370 
5 
py 1 



KtilMENDATIONS REGARDING PUBLIC 
EDUCATION IN TEXAS 



FOR CONSIDERATION OF 



THE GOVERNOR OF TEXAS AND THE THIRTY- 
FOURTH LEGISLATURE 



W. R DOUGHTY, 

STATE SUPERINTENDENT OF PUBLIC INSTRUCTION 




Von Boeckmanx-Jonbs Co., Austin, Printers 



V / > 



ItmMENDATKINS REGARDING PUBLIC 
EDUCATION IN TEXAS 



FOR CONSIDERATION OF 



THE GOVERNOR OF TEXAS AND THE THIRTY- 
FOURTH LEGISLATURE 



W. F. DOUGHTY, 

STATE SUPERINTENDENT OF PUBLIC INSTRUCTION 




Von Boeckmann-Jones Co., Austin, Phintebs 



u^ 



'^^° 
.(X* 



"If a nation expects to be ignorant and free, in a state of civilization, 
it expects what never was and never will be." — Thomas Jefferson. 

"The education of all classes of people is the best means of promoting 
the prosperity of the South." — E. E. Lee. 

"The proposition narrowed down to the line of candor is that, if the 
people ever expect to have an efficient system of public free schools, 
they must prepare to pay for it." — Governor James Stephen Hogg, in 
Message to Twenty-second Legislature. 

"It is an axiom in political science that, unless a i)eople are educated 
and enlightened, it is idle to expect the continuance of civil lil^erty or 
the capacity for self-government." — From the Declaration of Independ- 
ence, Adopted March 2, 1836, hg Delegates Representing the People 
of Texas. 



D. Of D^ 
1AY16 iS5 



CONTENTS. 



Some Facts and Figures 5 

Platform Demands 8 

Our Program of Work 8 

Eural School Eeorganization 10 

Financial Support '11 

Compulsory School Attendance 15 

The County Superintendent Proposition 17 

The Teacher Problem Unsolved 22 

The State's Institutions of Higher Learning 25 

The State's Institutions of Public Learning and Protection 27 

The Work of the State Department of Education 28 



RECOMMENDATIONS REGARDING PUBLIC EDUCATION IN 

TEXAS. 



SOME FACTS AXD FIGURES 

For a number of years it has been well understood, both in the State 
and out of it. that education in Texas Avas not and is not yet by far as 
universal and efficient as would become a great commonwealth. My 
purpose in this writing is to present to a thoughtfnl people the educa- 
tional situation just as it is in Texas to-day, without any coloring what- 
ever, and to suggest some means of improving present conditions. 

EDUCATIOXAL RAXK 

Eeports of the United States Bureau of Education and the United 
States Census Bureau indicate Texas as ranking thirty-eighth in general 
educational efficiency among the other states of the Nation. This is not, 
I am sure, a pleasing bit of information to patriotic Texans ; and, if 
it had been left with me to publish to the world Texas educational rank, 
the love I have for my State would have caused me to hesitate con- 
siderably before doing so ; but the records speak for tliemselves, and the 
eyes of the Nation are upon Texas. 

SOME RECENT STATISTICS 

According to the United States Census of 1910, there were in Texas 
at that time 282,940 people ten years of age and above unable to read 
arid write, 157,880 of whom were white people. Statistics just compiled 
at the State Department of Education, based on enumeration reports of 
census trustees, give a total of 1,433,4:70 scholastics seven to twenty-one 
years of age. A further investigation of the same records shows that 
only 870,000 of these children enrolled in the public schools last year, 
which nnndDer deducted from the estimated number of children within 
scholastic ages gives us the alarming number of 503.470 children who 
did not enter any public school during the j'ear. By deducting 30,000 
as a very liberal allowance for those who graduated within scholastic 
age and for those who attended private and parochial schools, we are 
still confronted with 533.470 children within scholastic age who should 
have been in school but failed to. darken the doors of any schoolhouse 
during the whole session of 1913-14. A further study of the Depart- 
ment records indicates that of the 870,000 children who did enroll in 
the public schools last year only 50 out of every 100 attended school 
daily. In other words, of the 870,000 children enrolled in the public 
schools last vcar 44 out of every 100 were absent from sdiool dailv. 



Eecommendations Eegarding 



THE NEGRO NOT WHOLLY TO BLAME 



The negro has for more tlian a generation been oiir scapegoat for 
backwardness in educational statistics; but no longer can this old ex- 
cuse do service in face of the facts. The records above referred to show 
that there are in Texas 275,346 negro children within the scholastic 
age, 7 to 31 years. Last year 162,000 of these negro children enrolled 
in the public schools of the State, and their attendance record was 57 
per cent, compared with 66 per cent for the white children of the State. 
The United States census report for 1910 shows that negro illiteracy 
in Texas decreased during the decade 1900-1910 by 42,520 persons, 
while the same report shows that illiteracy among the whites increased 
by 11,299 souls. At first sight these figures surprise us and in a sense 
tend to humiliate our spirit, for they show in round numbers that il- 
literacy among white people is on the increase in Texas, while negro 
illiteracy is on the decrease; but, on acount of the general increase of 
population during the period, the percentages for the two races, taken 
together or separately, are a bit more encouraging, for the same report 
shows that in percentage illiteracy was on the decrease in Texas during 
the decade 1900-1910. In other figures, combined for both races, illit- 
eracy in Texas decreased during the period under consideration from 
14.5 per cent to 9.9 per cent; or, stating it separately, the decrease 
among negroes was 13.6 per cent as against 1.8 per cent for white people, 
all of which indicates wholly unsatisfactory progress for Texas. 

TOWN AND CITY SCHOOLS 

The schools of the towns and cities have made wonderful progress and 
are ranked by leading school authorities, both in the State and out of 
it, as being first class in every respect. However, conditions in the towns 
and cities have favored the organization of independent and efficient 
school systems, and the concentration of wealth within their limits has 
made it possible for these schools to derive from taxation adequate finan- 
cial support. As a result about 520,000 children between the ages of 
seven and twenty-one years of age have the opportunity of attending 
good free schools nine months in each year; while 912,000 boys and 
girls within the same age limits residing in rural districts of the State 
are without ample school facilities and have the privilege of attending 
schools with sessions ranging from three to seven months. 

THE RURAL SCHOOL SITUATION 

A careful investigation of the school situation in this State makes it 
clear to the student that the backwardness of Texas in educational mat- 
ters is due largely to rural school conditions, which schools constitute by 
far the larger part of the State's educational system. Notwithstanding 
the fact that the schools of the towns and cities of Texas are classed 
with the very best of their kind anywhere established, yet the State as 
a whole ranks in general educational efficiency far down the line from 



Public PJducatiox in Texas 7 

first place. Therefore, if the schools of the towns and cities are classed 
with the best of their kind and yet the State as a whole is ranked thirty- 
eighth in line with lier sister states in general educational efficiency, it 
naturally follows in our process of reasoning that th(> rural school situ- 
ation must be sadly neglected in Texas. 

THE THIBTY-FOURTII LEGISLATURE 

Notwithstanding the fact that many of the leading nations of the 
world are now engaged in disastrous war, which has served to delay for 
a. time much constructive work in various lines of industry and to unsettle 
financial matters as well, it is sincerely believed by the conservative 
friends of public education that the present Legislature will go down 
in history with some very wholesome school legislation to the credit of 
its members; and why not? The interests of more than a million school 
children in Texas are calling for better educational opportunity, and 
the people of the State express themselves as being willing to support a 
well-organized and efficient system of schools for the proper education 
of their children. 

Let it be remembered that the preservation of our social, civic, and 
economic interests is wholly dependent upon an enlightened citizenship, 
and although business interests are suffering a partial suspense, it is none 
the less important that we look carefully to the proper education of 
all the people of to-day in order that we shall make secure to ourselves 
and to our }X)sterity the blessings of a government of the people, by 
the people, and for the people. The education of the people is the great- 
est business of the State, and without question the best thing in the 
world for any individual is an education of the right kind. Education 
of the right kind should give the individual vocation and character — 
vocation that he may earn an honest living, and character, that he may 
live an honest and useful life. 

EASY TO DEFER 

It is an easy matter to defer action on any arduous and baffling 
proposition to a more opportune day, but can Texans afford to delay this 
important work longer, when illiteracy is so prevalent in our midst? 
When we take into consideration the fact that more than 80,000 boys 
and girls will reach maturity this year in Texas, thousands of whom 
are unable to read and write, and when we are apprised that approxi- 
mately 125,000 children will come within scholastic age this year, a 
large percentage of whom will not attend school a single day, w^e are 
made to realize that now is the time to undertake great things for the 
education of tlie youth of this State. In order that we may prosper 
as a people and hold our own as a great state of the Union, it is neces- 
sary that we keep well in mind that the chief strength and support of 
any well-regulated democracy is an educated and enlightened citizen- 
ship. 



Kecommexdatioxs Kegardixg 



PLATFORM DEMA^^DS 



The educational pUiiik of the Democratic phitforin adopted at the 
El Paso Convention in August last reads as follows : 

A general diffusion of knowledge heing essential to the preservation of 
the liherties and the rights of the people, we demand that our educa- 
tional svstem shall not longer suffer from faulty organization and in- 
sufficient financial support. We commend the liheral appropriations for 
educational purposes made by the Thirty-third Legislature, and demand 
that this policy be pursued by the next and succeeding legislatures until 
the educational institutions of Texas rank with those of any other state 
in the Union. 

To the end that the boys and girls in the country may have advantages 
equal to those enjoyed by the children in the cities and towns, we de- 
mand the immediate improvement of the country schools, including 
efficient, prdfessional. non-political su]>ervision, and the establishment 
of properly equipped rural high schools, giving agriculture and other 
courses of study adapted to the needs of farming communities. 

We demand further: 

(a) the removal of the constitutional limitation preventing districts 
from levying a tax sufficient to provide for necessary buildings and the 
maintenance of schools for nine months in each year; 

(b) the submission of an amendment to the constitution which will 
provide that any county may levy, hy a majority vote of the tax payers, 
a county tax for the better maintenance of county schools; 

(c) the passage of an act authorizing trustees of a district whose tax 
pay'ers so vote, to furnish to the children of the schools, free textbooks; 

(d) the passage of a law, carefully planned and limited to suit the 
conditions in this State, requiring attendance upon the public schools. 

We are gratified at the rapidly growing demand for higher education 
and pledge the party to furnish to the young men and women of Texas 
facilities and opportunities not inferior to those offered by any other 
state. 

To that end we demand that permanent and dependable provision bo 
made for the support and development of the University, the A. & M. 
College, the State jSTormal Schools, and the College of Industrial Arts, 
and that such steps as may be necessary be taken, by constitutional 
amendment or otherwise, to provide for the erection of needed and 
permanent fire-proof buildings for these institutions. We also demand 
that the Legislature make appropriations for the support of Summer 
Sessions of these institutions, that the teachers of the State may have 
an opportunity to increase their professional attainments without undue 
expense. 

OUR PROGRA:\r OF WORK 

The oiliu-ational ])latfoi'm advocated !)y mo during my camjiaign for 
the position which I now occupy, is satisfactorily represented in the 
educational ])lank of the Democratic ])latform a(l<>])to(l at tlu' Fl Paso 



Public Education in Texas 9 

Convention and quoted above. Thi? i)latf()rni serves conveniently as a 
guide to our educational procedure during the next two years; and if 
organized in the form of an outline, it presents itself about as follows : 
Pur])ose: To promote the educational interests of all the people, and 
especially to improve rural school conditions to the extent that the boys 
and girls in the country may have advantages equal to those enjoyed by 
the children in the towns and cities. 

AVHAT IS REQUIRED 

1 . Better organizatioji of rural school forces. 

2. More efficient professional, non-political supervision. 

3. The establishment of properly equipped rural high schools care- 
fully ]:)lanned and well adapted to the needs of farming communities. 

4. More money for the maintenance of all the schools and especially 
for the rural schools. 

now TO REALIZE OUR AIM 

1. The enactment of a comprehensive and satisfactorv rural school 
law which will place within the hands of the people an efficient organi- 
zation for the development of rural school interests. 

2. The enactment of a law removing the office of countv superin- 
tendent from the domain of factional or partisan politics. 

3. The removal of the 50 cent limit on the hundred dollars valuation 
which is regarded as a handicap preventing districts from levying a tax- 
sufficient to provide necessary l)uildings and to maintain the schools for 
nine months in eacli year. 

4. The submission of an amendment to the Constitution which will 
provide that any county may levy, by a majority vote of the tax payers, 
a county tax for the better maintenance of county schools. 

5. The passage of a law, carefully planned and limited to suit the 
conditions in this State, requiring attendance upon the public schools. 

6. The passage of an act authorizing trustees of a district whose 
tax payers so vote, to furnish to the children of the schools, free text- 
books. 

7. In order that the facilities and opportunities for higher education 
offered to the young men and young women of Texas may not be inferior 
to those offered by any other State, permanent and dependable provision 
should be made for the support and development of the College of In- 
dustrial Arts, the four State Normal Colleges, the A. & M. College, 
the University of Texas, and the other educational institutions of the 
State. Steps necessary should be taken, by constitutional amendment or 
otherwise, to }irovide for the erection of needed and permanent fireproof 
buildings for the institutions above named, the schools for the blind, 
the deaf, the orphans, and wayward youth. 



10 Recommexdatioxs Rkgardixg 



RURAL SCHOOL RE-ORGAXIZATION 

liUTiAL SCHOOL LAW XEEDED 

As alrearlv indicated, the chief weakness of the State's system of 
education is to be found in tlie organization and administration of the 
rural schools. The school laws of Texas are so drawn that the rural 
schools of the State can not make satisfactory progress under present 
conditions until something very definite is done to relieve the situation. 
With a view to overcoming this difficulty, the Thirty-fourth Legislature 
should enact a wholesome and comprehensive rural school law, which 
will place in the hands of the people of each county a. systematic and 
business-like organization of rural school forces for the improvement 
and eidargement of the rural school opportunities of the State. If we 
are going to accomplish for the 912,000 country boys and girls what 
has been done and is being done for the 520,000 children residing in 
the towns and cities, we should go about our undertaking in a business- 
like, common-sense way, very much as has been done by the friends of 
education where schools have l)een heretofore successfully established. 

MAIX FEATURES OF THE LAW 

The proposed rural school law is intended to place in the hands of 
the people an effective county organization for the enlargement and im- 
provement of rural school interests. It is thoroughly democratic in every 
respect, since its operation depends upon the will of the people who 
support it. This proposed law is intended to carry forward all the good 
features of the present rural high school law, and to overcome all its 
disadvantages. The law should authorize the election of a board of 
county school trustees, composed of five competent and capable friends 
of public education, as is now the case, and this board should be em- 
powered by law to organize, manage, and promote the educational in- 
terests of the people residing in the country in very much the same man- 
ner as the school affairs of the cities and towns are now managed by 
boards of trustees. Local boards of trustees should not be abolished, for 
they are needed in the organization of the county system, to attend to 
local needs, and, when occasion requires it, to represent community 
interests l^efore the county school trustees. All rights and powers per- 
taining to public free schools of the county that have heretofore been 
vested in the commissioners courts should by the rural school law be 
vested in the county school trustees. 

Some of the important duties of the county school trustees would 
be the following: 

1. To sub-divide the county into desirable school districts. 

2. To make desirable changes in the boundaries of both common 
and independent school districts. 

3. To locate schoolhouses where they will serve the best interests 
of all the children of the district. 



Public Education ix Texas 11 

4. To locate and establish rural high schools with vocational courses. 

5. To transfer pupils from one district to another as may serve the 
best interests of vhe children. 

G. To levy s])eeial school taxes, when authorized by majoritv vote 
of the people, for the adequate su])port of the rural schools. 

7. To issue and ])rovide for tlie sale of common school district 
schoolhouso bonds when so authorized I)y a majority vote of the iieoiile. 

8. To nuike sale of county school lands if deemed advisaljle. 

9. To invest county permanent school fund safely. 

10. To approve the reports of depositories of school funds. 

11. To grade and classify the schools of the county. 
1"?. To validate contracts of teachers with local boards. 

13. To hear appeals from the county superintendent. 

14. To apportion the school funds of the county. 

15. To adopt rules and regulations for the management and control 
of the public schools of the county. 

As above indicated the proposed rural school law is, in a sense, a re- 
vision of the present rural high school law, which is being amended so 
as to make it more practicable under and more applicable to rural con- 
ditions. As the rural high school law now reads, its purpose is some- 
times misunderstood, and doubtless, in some instances, it has operated 
in such a way as to hinder rather than help rural school development. 
By no means should the present rural high school law l)e repealed in 
toto, without substituting in its place a more comprehensive and effective 
rural school law, as herein proposed. 

AVOULD MAKK FOR PROGRESS / 

The proposed rural school law would look first to the building up of 
good elementary schools out in the country, where the farmers live, and 
next to the establisliment of vocational high schools in rural districts, in 
which will be taught along with the fundamentals of an education agri- 
culture, horticulture, animal husbandry, farm economics, household 
economics, marketing, purchasing, community co-operation, and what- 
ever else will bring school instruction in closer touch with rural activities 
and make it thoroughly alive and interesting to both pupils and parents. 
"With a rural school law comprehending the points as herein outlined, 
it will be possible for the county school trustees, together with tlie county 
superintendent, who would l)e the board's expert adviser on educational 
niatter>, to make rupid progress in ]ierfecting country school re-organiza- 
tions for the devel(ii)incnt of efficient rural schools. 

' FIXAXCTAL SUPPORT 

Another evident weakness of the State's system of public education is 
a lack of any adequate means of raising sufficient funds with which to 
support all the schools for such time as they should be ojien for the in- 
struction of the children of the State. In education as elsewhere in 
the administration of our ]uib1ic affairs, the financial problem is most 



12 Eecommexdations Eegakdixg 

difficult of solution. Money is always needed where good schools are 
maintained. Every advanced step in education calls for an increased 
outlay of public funds. New types of education and greater efficiency 
can 136 had only by increased expenditures. The lengthening of the 
school term in the poorer districts, the. provisions for compulsory attend- 
ance, and expert supervision make increased demands upon the State 
as a whole. 

The question naturally arises, is the State justified in increasing its 
expenditure for public education? I Avould answer this question by 
asking two others : Is not education a means of increasing social ef- 
ficiency ? Is not the investment made in schools ultimately returned to 
the State many times over in increased earning capacities and better 
living facilities of its citizenship? 

Compilations have been made which show that the graj^h representing 
the average expenditure per capita by states for public free schools is 
closelv paralleled by the one representing the average earning capacities 
of the citizens of the same states. In other words, the average earning 
capacities of the citizens of the states rise or fall as the average ex- 
penditure per capita rises or falls. 

History is an open book to the fact that no nation ever achieved re- 
markable advances in civilization when the masses remained in igno- 
rance any length of time. From the Declaration of Independence of the 
Eepublic of Texas we have a significant assertion as follows : "It is an 
axiom of political science that unless a people are educated and en- 
lightened, it is idle to expect the continuance of civil liberty or the 
capacity for self-government." Thomas Jefferson is recorded as saying 
that, "If a nation expects to be ignorant and free in a state of civiliza- 
tion, it expects what never was and never will be." Eobert E. Lee said 
that the education of all classes of people is the best means of promoting 
the prosperity of the South. 

THE PERMANENT SCHOOL FUND 

Texas has a right to be i>roud of her magnificent permanent school 
fund, but some good people err when they suppose that, on account of 
the fact that Texas has the largest permanent school fund of any state 
in the Union, the State spends more per capita for education than does 
any other state. In fact, the figures are quite to the contrary, for the 
report of the United States Commissioner of Education for 1913-13 
indicates Texas as holding thirty-ninth place from the first in regard 
to the amount spent annually per capita for school purposes for children 
of school age in each state. The following will indicate how the State 
per capita apportionment runs in ten of the states of the Union, selected 
at random : 

South Carolina $ 3 

Alabama 4 

Arkansas 6 

Texas 8 



Public Education in Texas 13 

Oklahoma 13 

Xebraska 18 

Iowa 20 

Tllinois 23 

IfassaclniPetts » 25 

California 27 

^[n?t of the states mentionefl ahove have no permanent school fund 
at all, and none have a fnnd nearly so lar^e as tliat of Texas; yet most 
of them spend far more money per capita for the education of the 
children than Texas spends. 

GOVERNOE HOGG's IDEA 

It will he remembered, no doubt, that Governor Hogg during his ad- 
ministration advocated strongly a better system of schools for the people 
of Texas and said that "If the people of Texas expect to have an efficient 
system of schools, they must prepare to dig down in their pockets for 
tile money to support the schools."'" When Governor Hogg made this 
very wise recommendation he knew that the people of Texas could not 
depem^ipon the revenue derived from the permanent school fund as 
being aoequate to maintain good schools for all the children of all the 
people. Although good organization of rural school forces will result in 
a more economic expenditure of school funds, it will, nevertheless, be 
necessary for the people to supplement liberally with their own money 
the revenue derived from the permanent school fund if the State's system 
of education shall not continue to suffer from inadequate financial sup- 
port, which should never be the case in a great commonwealth like 
Texas. 

UNITS OF TAXATION 

In general, there are three units of taxation: the State, the county, 
and the local district. In keeping with the fact that tlie education of 
the people is the greatest business of the State, it is thought advisable 
that the State should provide at least half of the necessary funds for sup- 
port of the State's system of public free schools. According to the 
records of the State Department of Education, the State is providing 
considerablv less than half the money now expended in support of the 
public schools, and yet the school session is only two-tliirds of what it 
should be. If the State per capita apportionment is ever to be much larger, 
it will be necessary to provide, by constitutional and statutory provision 
for the levy of a State tax of something more than twenty cents, which 
is now the State's limit for public schools. 

A COUNTY TAX RECOMMENDED 

County taxation for school purposes is unknown in the educational 
history of Texas. Many of the counties of the State have permanent 
school funds. There should be submitted to the people by the Legis- 
lature an amendment to the Constitution authorizing the people of a 



14 Recommendations Regaudixg 

county to levy upon themselves, by majority vote, a mill tax whereby 
the revenue derived from the investment of the county permanent school 
fund could be supplemented if necessary. The county tax proposition 
is in successful operation in nearly all the states cfi the Union, and such 
provision in operation in Texas would enable the county school trustees 
to- make a substantial per capita apportionment annually in support of 
the county schools. 

LOCAL TAX PRIVILEGE EXTENDED 

The local tax j^rivilege, as it now stands, should be encouraged, l)ut 
the fifty-cent limit, which is regarded by most friends of education as 
being a handicap to the educational progress of not only the rural dis- 
tricts l)ut of the entire state, should be abolished. In accordance with 
the democratic idea, the people of each community should be permitted 
to levy upon themselves such tax as in their judgment would be neces- 
sary to raise enough funds with which to supplement State and county 
apportionments and give to their children nine months free school in 
each year. If any Statutory limit is placed upon local taxation, such 
limit should not be less than one dollar on the hundred dollars of 
valuation. 

THE PLAN IS EQUITABLE 

The plan given above of raising adequate financial support for the pub- 
lic free schools of the State is, I believe, fair and equitable in all respects, 
otherwise, I would not advocate it. It works no hardshi]) on any person 
or persons, but provides that the boys and girls who toil in the fields 
on the farms five, ten, or fifteen miles in the country shall share 
equitably with the children of the city tlio lienefits of taxation for 
public school purposes. 

In my opinion, the children who cultivate the fields, harvest the 
crops, and market the nroducts of the farm are doing as much to 
sustain and promote the financial and industrial development of the 
State as are the children of the towns and cities. Education of the 
right kind increases productive power of the individual, and thereby 
makes him a better customer for the merchant ; he .governs himself : 
he produces more than he consumes; he marries him a wife, establishes 
him a home, and makes the world better for his having lived in it. 
For these reasons, I believe that it is to the best interest of the tax- 
payers of the State to provide the funds necessary for the adequate 
support of the public schools. 

Many school officials report that tbev cannot liave good schools because. 
as the laws now read, the various school districts are not permitted to 
tax themselves an amount sufficient to provide the necessarv funds 
for tlie support of their schools. Without question, the laws should be 
so drawn as to help the i!eo])le rather than hinder them in their progress. 

If anyone hesitates to support the plan herein suggested on the 
grounds that it would he objectionable to taxpayers, let him reconsider 
his position before coming to a final conclusion. In all my experience, 
I have found, as a general proposition, that taxpayers never cowiplain 
of their taxes so long as the money is spent wisely and good results 



Public Education ix Texas 15 

are obtained tlierefrom. Men who have succeeded in accumulating prop- 
erty like to make good investments and if those responsible for the 
expenditure of the children's money will see to it that good schools 
arc maintained with the money we are now receiving, it is my opinion 
that, if the laws herein reconunended are enacted by the present Leg- 
islature, the necessary funds will be forthcoming for the support of all 
the schools for nine months in each year, in good schoolhouscs. with 
adequate equi])meut, and under tlic direction of competent nnd well- 
paid teachers. 

COMPULSORY SCHOOL ATTEXDAXCE 

THE PROBLEM PRESEXTED 

With reference to compulsory attendance, the State ])reseuts its own 
peculiar situation. Economic and social conditions have not readily 
contributed to the propaganda. Being largely an agricultural people, 
the children have l^een kept from school to work in the cotton fields, 
especially those of tlie poorer classes, both white and black. The South 
has been made to bear the brunt of slavery. Millions of ignorant ne- 
groes were freed in our midst and left for the people of the South to 
educate with their own funds. In their effort to do them and their 
own children justice, and at the same time come out from under the 
wreck and ruin of the war between the states, Texas has l)e(>n unable 
to make anything like satisfactory progress in comparison witli our 
sister states. An inclusion of negroes in all southern statistics has 
served to belittle the white man of the South in the eyes of the world 
as it relates to his progress and achievement. 

The prol)lem of getting the children out of the cotton fields into tlie 
schools for a portion of each year is (piite a difficult one. I grant you. 
but it is not much more serious in its nature than that one prcseiited 
in the towns and cities of the South by the less fortunate of lioth races. 

Statistics already quoted show that we are not educating all the 
children of all the ])eople. Hundreds of thousands of our children an^ 
permitted to go each year without even entering a scliooj of any kind 
Avhatever, and practically all of those cliildren are within reach of free 
schools, too. Why are they not in school ? 

In the first place, there prevails in our midst a sentiment which leads 
some good people to object to compulsory school attendance on the ground 
that it tends to bring about equality of races, of classes, and of in- 
dividuals. This is not necessarily true, for education is supposed to bring 
out individual differences of men and show them up for what thev are 
worth to the world from the standpoint of useful service, and that is 
what sometimes cuts worse than a two-edged sword. Education of the 
riglit kind develops a child according to God's own plan ; it tacs the 
man, so to speak, for what he is worth ; it classes the hewers of Avood 
and the drawers of water, and it rewards each individual according 
as is his due. 

'Won often o|)pose tiie nmvement for compul'^ory attendance l)ecause 
they have l)een taught that the general ]irosperitv of the people depends 
in a large measure upon there l)eing a ])oi)idation of ignorant jieople 
from whom shall come the laborers. Education i<j princioallv training 



16 Eecommendations Eegarding 

for service; and when our schools are made to reflect community in- 
terests in their courses of study, we shall find in the field more efficient 
laborers, who will go about their work from day to day bappy and con- 
tented in the discharge of their duties. Education of the right kind 
will reveal to them the possibilities of their work, and thereby bring 
about a more amicable relation between the employer and employee. 

Men will oppose the movement for political reasons because they 
know that an appeal to the prejudice of the people is sometimes more 
effective in turning the balance of power than is the weight of reason; 
and too, in this day of personal greed when there is no hesitancy on 
the part of some to exploit child labor for financial advancement, 
we may expect strong opposition to any movement looking to the libera- 
tion of the masses through popular education. Patriotic men will de- 
fend the movement because they believe that education is the greatest 
factor in perpetuating the blessings of civil liberty and in promoting the 
peace and prosperity of all the people. 

In some respects I feel that this argument for com]5ulsory school 
attendance is unnecessary, and I am encouraged in mv conviction by 
the statements of some of our best citizens and heaviest taxpayers, who 
are demanding that, since they are being taxed in support of the public 
free schools, the children of all the people should be required to attend 
school a reasonable portion of each year. I have noticed Avith keen in- 
terest that these patriotic men raise no objection on account of the 
taxes they pay in support of the public free schools, but that their claim, 
on the other hand, is that the children of all the people should be re- 
quired to attend school, in order that the purposes for which thev are 
taxed may be realized. 

The idea of compulsion does not, as a general proposition, appeal to 
anyone, but, wlien we take into consideration the fact that many parents 
do not appreciate the reasons why they should send their children to 
school, or, if they do, circumstances fail to favor school attendance, 
we see at once that it is necessarily in the interest of the child who is 
without proper guidance to require that every child attend some school 
a reasonable portion of each year. If we believe that education of 
the right kind is tlie very best thing in the world for anv individual, 
then, in order to be consistent, we should endeavor to bring into the 
schools each year all the children of all tlie people that thev mav learn 
better ways of living. 

THE ESSENTIAL FEATURES OF AN ADEQUATE C0:MPULS0I{Y SCHOOL 
ATTENDANCE LAW 

Dr. Carter Alexander, Professor of School Administration, Tanderl)ilt 
Univeraity, who has made a ver^- careful study of compulsorv school at- 
tendance possibilities, and who is now assisting South Carolina in draft- 
ing a suitable school attendance law for that State, suggests the follow- 
ing features as essential in the formulation of an arlequate compulsory 
school attendance law for any State : 

_ 1. An annual school census taken l)y the school authorities of the 
city or district. 

2. Prompt reports by teachers of pulilic and private schools of all 
absentees not legally excused. 



Public Education in Texas IT 

3. Any necessary child labor laws well enforced. (This considorcUion 
should be very carefully worked out for Texas conditions.) 

4. A clear statement of what should constitute legal excuses. 

5. Special provisions for habitual truancy and irregular pupils. 

6. Properly qualified attendance officers. 

7. A definite, specific, annual ]X'riod of attondnnco. (Tliis must 1)0 
carefully looked after.) 

8. Relief to indigent parents in certain well-defined, worthy cases. 
(This might be provided l)y private philanthropic or charital)lo organiza- 
tions if necessary.) 

THE COUNTY SUPEETNTENDENT PROPOSITION 

One of the most important considerations tliat will, in all probability, 
engage the attention of the Thirty-fourth Legislature will be the enact- 
ment of a law removing the office of county superintendent from the do- 
main of factional and partisan politics. If rural schools are ever to 
compare favorably with those of the towns and cities, it is absolutely 
necessary that provisioii be made for efficient professional county super- 
vision : and, in the interest of these schools, the county superintendent 
should be selected from the world at large by the county school trustees, 
at such salary as in their judgment would be necessary to secure the 
services of a capable and competent superintendent. I know that this is 
taking advanced ground on the county superintendent proposition, but 
the interests of the rural schools demand all that I have said. 

With regard to supervision, the towns and cities have great advantage 
over rural schools. School boards of the cities are permitted to elect 
their superintendents and fix their salaries, to select supervising prin- 
cipals and special supervisors, wlio inspect and direct instruction in city 
schools with a thoroughness unknown in rural schools. In the cities we 
find the best trained and most experienced teachers, while in the rural 
schools nearly all teachers are inexperienced, untrained, and, for the 
most part, poorly educated. With such vast difference existing between 
the rural and city schools in organization, supervision, and instruction, 
Ave can easily understand why the rural scliool situation in Texas is so 
unsatisfactory. 

A FALSE IMPRESSION 

The county superintendent ])roposition seems to arouse especial in- 
terest in some counties, and occasionally I am asked the direct question, 
''Are you in favor of taking out of the hands of the people the election 
of the county superintendent?" The very words of such a question would 
indicate a false impression on the part of the inquiring person. It is 
meant, of course, Iq ask if I favor the election of the county superin- 
tendent by the county board of education, and by that method it is 
understood tliat the peojile will have no voice or recourse in the selection. 
If I felt about the proposition as do some sincere persons whom I know, 
I would be against it, too, because I certainly am a believer in government 
of the people, bv tlie peo])le. and for the people. But tlio fact tliat I am 
thoroughly democratic does not deter me from wanting to see the affairs 



18 Eecommexdatioxs Khgardixg 

of tlie people handled in a business-like way. just as the stockholders of a 
business enterprise, as, for example, an oil mill, a shoe factor}^, or a 
hankin<j institntioii, handle their Imsiness. 

AX UXKIXD CRITICISM 

llio people should not be criticised for their reluctance in surrender- 
iiifi' any of their rights and privileges, for why should they ever want to 
surrender a single right or privilege, personal or political, except they 
be convinced that it is to their interest to do so? Nor should the people 
be ridiculed as being incom])etent to vote in the election of the county 
superintendent, for they are just as competent to select a county super- 
intendent, as they are qualified to vote in the election of a United States 
senator or of a president of the United States. This being the case, 
there are evidently other considerations which would influence one who 
believes in the rule of the people to advocate the selection of the county 
superintendent by the board of county school trustees. 

it's a BUSIXESS PROrOSITION^ 

After all, it is a business pro]iosition, and, as you may alreadv know, 
the first thing done by the shareholders of an industrial or financial enter- 
prise, in organizing for business, is to meet and elect a board of directors, 
usually five of their number, who are delegated with authoritv to man- 
age and control the business affairs of the company in such a manner 
as will, in their judgment, make the enterprise pay a dividend in dollars 
and cents. The first important act of the board is invariably to select 
someone with expert knowledge of the work under hand and place him 
in charge of the situation. The proposition to have the people elect a 
county board of school trustees to organize, manage, and promote the 
educational affairs of the county, is identically analogous to that of 
organizing any successful business enterprise composed of shareholders 
or stockholders, as the case may be. The citizens of the county would 
be, as a matter of fact, the shareholders and certainly they are the 
strength and the support of the county government. The purpose of 
the people in such instance would be to establish and maintain good 
schools for their children, and their great dividend would be the men 
and women of character they could make of the boys and girls who at- 
tend these schools. 

X"OT A REVERSAL OF AUTIIOIUTY 

Tn fact, it is not a change in the mann.er of procedure in selecting the 
county superintendent, and not a reversal of authority that is desired. 
Tlie proposed ]:)lan of electing a county board of school trustees bv a vote 
of the people, the duty of which board would he to select a county super- 
intendent who would be their executive officer in organizing and pro- 
moting the school interests of the county, is enijihatically not a scheme to 
take out of the hands of the ])eople any of their rights and powers; but, 
on the other hand, it is one feature of a plan, successfully administered 



Public Educatiox ix Texas 19 

in thirteen other stetes and in the cities and towns of all the states, to 
place in the hands of the people an efficient organization for handling 
the educational interests of all the children of the county in what is 
conceded in hnsiness affairs to l)o Ihe most successful way of managing 
any enterprise or undertaking. 

A THOROUGHLY DEMOCRATIC PLAX 

Sometimes it is argued against this proposition that it is undemocratic 
and not the people's way of handling matters. If hy this it is meant 
representation, there is evidently a misunderstanding in the minds of 
those making the charge; for five competent and capable friends of edu- 
cation elected by the people to organize, manage, and promote the school 
interests of the county are mathematically more representation than one 
person elected to suixn-intend the schools of the county. 

In answer to the charge that it is not the people's way of handling 
school affairs, let us examine for a minute the development of the public 
education idea in America and see w^hat light we get on this pro])Osition. 
When public free schools w^ere first being inaugurated in this country, 
the people of the tow^nships, as they were then called, would come to- 
gether in public meetings, as was the democratic custom in those days, 
discuss school questions, and elect boards of trustees authorized to organ^ 
ize, manage, and promote the school interests of the town. The free 
school idea spread westw^ard, and we find the board plan permeating 
school organization of both church and state in every particular, except 
in the office of county superintendent. As a matter of fact, the office 
of county superintendent was not authorized until recent years, long 
after free schools had been in operation many years. Xaturally, when 
the idea of supervision prevailed upon the i>eople, and the office of county 
superintendent was about to be created, it fell to the lot of the legislature 
of the state to authorize the office. In drawing the bill, it was clear to its 
author and members of the legislature that the superintendent, should 
have his office in the county courthouse, and view'ing the position as a 
courthouse job, it is easy to understand why the selection of the county 
superintendent was dumped into politics instead of being placed in the 
hands of a board. As matters now stand, the manner of electing the 
county superintendent is the prescription of the legislature and it is not 
the ])eople"s way as revealed by a study of the history of education in 
the United States. 

THE PRIXCIPLE IX I'ltACTICK 

The proposition of authorizing the people to elect five ca|)able and 
competent friends of education, whose duty it would be to select 
a county superintendent and proceed to organize, manage, and ])romote 
the school interests of the county is the method now in ]iractice in all 
the cities of the land, and it is conceded by all that the schools of cities 
are thoroughly organized and well managed. So good are these schools 
in comparison with those in the country that the ]:)eople are moving by 
the thousands from the farms to the cities in order to give their children 



20 Eecommendations Regarding 

better educational opportunities in schools managetl according to the 
plan herein advocated. The plan is not unlike that of electina; a com- 
missioners court to handle the business affairs of the county, nor would 
it be unlike the democratic plan of sending delegates to county conven- 
tions to voice the will of the people, nor unlike the people's plan of 
electing someone to represent them in the Legislature, nor unlike the 
custom in practice by the Baptists, the Methodists, the Presbyterians, the 
Christians, the Catholics, and other religious denominations in handling 
their educational matters through boards of education. 

TEXAS TEACHERS ENDORSE THE PROPOSITION 

On January 24, 1913, during the session of the Thirty-third Legis- 
lature, there met in Austin a committee representing the Texas State 
Teachers Association, composed of the State Superintendent, who was 
then the Hon. F. M. Bralley; the president of the State Teachers 
Association, which position it was then my honor to occupy; and the 
entire executive committee of the association as follows : F. Y. Gar- 
rison, Sulphur Springs; H. F. Triplett, Beaumont; W. T. Adams, Tyler; 
J. A. Thomas, Greenville ; G . B. Winn. Waxahachie ; E. B. Stover, 
Mexia ; Walker King, Palestine ; S. C. Wilson, Huntsville ; C. A. Peter- 
son, Yoakum; Peyton Irving, Jr., Brenham; S. P. Brooks, Waco; J. 
M. Carlisle, Arlington; George H. Carpenter, Wichita Falls; P. F. 
Stewart, San Antonio ; A. W. Evans, Uvalde ; W. W. Lackey, Midland ; 
and C. A. Bryant, Dallas. 

This committee met for the purpose of presenting to the legislature the 
resolutions of the Texas State Teachers Association, among whicli was 
one favoring the election of the county superintendent bv the county 
board of education. In support of this resolution, the committee for- 
mulated eleven valid objections to the present method of electing the 
county superintendent and offered eight sound reasons why the selection 
of the county superintendent of public instruction should be made by the 
board of county school trustees, whicli arguments are here submitted 
for your consideration. 

OBJECTIONS TO PRESENT METHOD OF ELECTING COUNTY 
SUPERINTENDENT 

1. The county superintendent is elected at the same time and in the 
same manner that the state and county officers are chosen, and the 
office and the person who is to fill it are thereby forced into the political 
wrangles and contentions of state and county politics to the detriment 
of good schools. 

2. The three or four months of time utilized by the countv super- 
intendent in making a political campaign for re-election to an educa- 
tional position is a total loss to the schools of the county. 

3. The bitterness and contention frequently engendered among the 
people by the candidates for county superintendent in the campaign 
often continue after the election, preventing the hearty co-operation of 
the educational forces of the county in promoting the good of the 
schools. 

4. The expenses incident to the campaign for the office materially 



Public Education in Texas 21 

reduce the small compensation fixed by law for the county superin- 
tendent. 

5. The inefficient county superintendent, under the present plan, ' 
cannot be dismissed from the office until the expiration of his term, 
and not then in some counties if he is a successful ]jolitician. 

6. The conditions of election and of service tempt some county super- 
intendents to develop into politicians instead of into ptrong-, capable, and 
efficient school officers. 

7. The expert knowledge, professional training and sl'ill required to 
make a genuinely successful educational officer do not necessarily carry 
with them the ability to win votes in a hotly contested political cam- 
paign, and as a result the person of lowest qualifications offering 
for the office may easily win in the contest. 

8. The capable, skillful county superintendent frequently fails of 
re-election, not because of inefficiency, but because he has held the office 
two terms. Frequent changes of teachers and superintendents who 
are rendering efficient and acceptable service are detrimental and hurt- 
ful to good schools, city or county. 

9. Men of high ability and special training are. as a rule, reluctant 
to enter the political campaign in Texas to secure the office of county 
superintendent of public instruction because of tlie uncertaintv of election 
and of the unfavorable conditions of service. 

10. The choice of the county superintendent is at present restricted 
to those who offer as candidates in the campaign, even though none of 
the candidates possess special qualifications for the work of the office. 
This is not in harmony with sound educational principles and Inisiness 
judgment as applied to schools. 

11. The newly elected county superintendent, under flic present plan, 
assumes charge of the office after the beginning of many of the schools, 
in ISTovember, and at a time that is too late for him to formulate wise 
policies and secure, in carrying them out for the good of the schools, 
the intelligent co-operation of teachers, trustees, and of the i^enple 
generally. 

eight reasons why the selection of the county supkktxten-dext 

OF public instruction should be made by TITE BOAIU) OF 
COUNTY SCHOOL TRUSTEES 

1. It would remove the office from the wliir])ool of i^iate and county 
politics and make practicable the giving of careful consideration to 
special fitness, professional knowledge and skill, and proved aliilitv in 
the selection of the countv superintendent, as is now the case in tlio 
selection of the superintendent of schools in the town or city. 

2. It would make it unnecessary for the countv suiierintendent to 
spend three or four months everv two yonrs in making a political cam- 
pai.cjn for an educational position. 

.3. It would eliminate the two-term custom, and would offer a strong 
incentive to the county superintendent to render efficient service, his 
re-election being practically insured so long as he proved himself to be 
the right man in the right place. 

4. Men of special ability and skill would be attracted to the office 
of countv superintendent, as is now the case Avith the office of city super- 



22 Recommexdations Kegaudixg 

intenclent of schools, and a larger, better quality of service would be 
rendered to the county schools. 

5. The work of the county superintendent would be placed upon a 
professional basis instead of upon a political l)asis as it now is, and nien 
of native ability would thereby be induced to make special preparation 
for it. 

6. The county superintendent would be able to concentrate his 
efforts and time in promoting good schools for the children, and would 
not find it necessary to "play politics" and to keep in close touch Avitli 
political issues and campaigns which frequently distract people. 

7. The county superintendent who neglected his duty, proved to be 
incompetent or inefficient, could be dismissed at any time, and a more 
capable man could be employed. 

8'. It would permit the choosing of the county superintendent from 
a larger list of capable, well-trained men, as is the case now in choosing 
city superintendents of schools. 

Without question in my mind, the jjlan of electing a board of county 
school trustees, whose duty it would be to select a county superintendent 
to assist them in organizing, managing, and promoting the school in- 
terests of the county is thoroughly democratic, and I am strong in my 
conviction that it is a sane and business-like way of going about the 
undertaking which is to give the 700,000 country boys and girls of 
Texas good school facilities for nine months in the year as is now being 
provided for the 400,'000 boys and girls residing in the cities and towns, 
where the schools are operated under a similar plan of organization. 
Let us, therefore, be none the less zealous in preserving the rights of the 
people to govern themselves, but, at the same time, let us lav aside all 
prejudice, if we have any, and open our minds to common sense and 
reason in an effort to serve the educational interests of all the children 
of all the people, for the child's interest is the first consideration. 

THE TEACHER PROBLEM UNSOLVED 

In taking account of any system of well-regulated schools, the teacher 
problem must necessarily be considered as one of the principal factors 
contributing to the success of the schools. According to the records, 
there were in Texas last year 21,500 white teachers and 3G00 negro 
teachers engager! in public school work, whicli numbers added give a 
total of 25,100 public school teachers in the State. Approximately 22 
per cent of these teachers hold permanent State certificates, 31 per cent 
of them hold first grade certificates, and 47 per cent of them hold 
second grade certificates. 

The responsibilitv of securing, ])laciug, and liuilding np strong teachers 
for the children of tlie schools necessarily rests heavilv upon adminis- 
trative heads. In order that the public school interests of the State 
may not suffer for want of proficient instruction, this great bodv of 
teachers must he kept growing in ]n-ofessional efficiencv from year to 
year, while thousands of others must be jirepared each year for the 
service. The preparation, examination, and certification of teachers, 
their continued improvement and length of service, arc special problems 
which have not vet been worked out satisfactorily bv anvone l)ut have 



Public Education ix Texas 23 

been regarded important enough to engage tlie attention of most pro- 
found students and the greatest statesmen of tlie hmd. 

Before tlie inauguration of the free school system in the South, the 
teacher was more of a transient being than now; rarely did he have a 
family, and not often did he have a fixed boarding place in the com- 
munity where he taught subscrijitiou school. A little evidence of a 
working knowledge of the elementary subjects and an ability to handle 
well the rod were usually the leading requirements made of the man 
who came to "take u]j school" in the community. Following the intro- 
duction of free schools, higher and Iietter standards were exacted by 
tlie State of those who would l)e teachers. Xormal schools were soon 
after established for the purpose of giving the ])ros])ective teacher pro- 
fessional training along with academic learning. This period in the 
development of the teacher is characterized by professional training, and 
may be regarded as the second in the evolution of the Southern teacher. 
In more recent years, in fact, now, we are talking about selecting, retain- 
ing, and promoting teachers on the basis of professional efficiency, mean- 
ing that a teacher's worth to her school is to be determined bv her 
powers to bring about desirable changes in the minds of her ])upils that 
will result in the formation of character. This ]>eriod, marked with 
the beginning of ])rofessional efficiency, may be regarded as thii'd in 
the evolution of the teacher, the establishment of which now i)resents 
a difficult problem. With the inauguration of the free school system, 
there came an unprecedented demand for teachers. Most anyone with 
a little knowledge of the elementary subjects could easily scure ap))oint- 
ment as teacher and earn some ready money. If a younsr man in the 
course of his preparation for law or medicine or any other profession 
found himself in straightened circumstances as to finances, the school- 
room has offered him a ready source of relief. If a young lady, pre- 
vious to her matrimonial tie, finds herself in need of money to tide her 
over the pre-nuptial period, she likewise has turned to the schoolroom 
with some degree of satisfaction. In more than one case the "educated" 
man who has been unsuccessful in other callings has found himself 
redeemed in the ranks of the teacher. The custom of the ladies in 
getting married and the practice of the man in using the profession 
of teaching as a step])ing stone result in complete regimentation of the 
teaching forces in Texas once in slightly less than four years. This 
continual change in the ranks of the ]:;rofession I reo-ard as a great hin- 
drance to the progress of public education, and it is one of the most 
diflRcult problems for solution in the administration of schools. As a 
matter of fact, then, the status of the )nd)lic school te;icher is not yet 
what it should be in Texas, which statement is supported bv the statis- 
tics aboye quoted, indicating that more than one- fourth of Texas t<\nch- 
ers leave the ranks of the profession annually to enter other lines of work. 

In order to protect the educational interests of the child and to avoid 
the necessity of inducting into the schools each year approximately 
6000 inexperienced teacheis. it will be necessary to reconstruct our "dn- 
cational machinery in such a way that it will be ):)ossible to i)ron!ote 
and advance the successful and eflTicient teacher on the basis of nu'ril 
alone somewhat as is now done in other ])rofessions. Already the in- 
ducements are sufficient to secure the services of beginners, l)ut the 
remuneiation is not enough to retain in the profession the successful 



24- Recommendatioxs Regarding 

teachers and induce them to seek professional improvement. For exam- 
ple, some of our leading lawyers, doctors, preachers, and successful 
business men have demonstrated their abilities to do things first by 
teaching for a while. As beginners, the salary paid was satisfactory, 
but the inducements offered to make teaching a profession were not 
sufficient to cause them to remain in the schoolroom permanently. 

Be it far from my intentions to influence you in believing that the 
financial reward is the only inducement to the individual who enters 
the schoolroom to devote himself to the profession of teaching the youth. 
Well do I know that "Man liveth not by bread alone," but the teacher 
regards his financial income as rather essential in providing a comfort- 
able home, in supporting a family, and in developing professional effi- 
ciency. There is no temporal law that forces anyone into the pro- 
fession of teaching, and because one has entered it is no reason why 
he should undergo any great sacrifice in order to instruct the youth 
of the land. The teacher, as a matter of fact, loves home and family, 
friends, and the comforts of life as much as other people do. 

And what is the State doing to supply the schools with professionally 
trained teachers? In answer to this question, it can be said that the 
State is now maintaining four State Normal Schools for the education 
and training of teachers for the public schools, and in addition thereto, 
departments of education are in successful operation in the State Uni- 
versity, the Agricultural and Mechanical College, and the College of 
Industrial Arts, all of which are rendering most valuable service in 
supplying desiral)le teachers for the public schools of the State. The 
supply, however, is inadequate to the demand, and the facilities of these 
institutions need to be increased and liberally supported. 

SUPPORT FOR SUMMER SESSION 

Besides the usual appropriations made by the Legislature for the 
maintenance and support of the above mentioned schools during the 
regular annual session, there should be made in addition thereto a 
liberal appropriation in support of the summer session of each such 
institution engaged in training teachers for the public schools, in order 
that the teachers of the State who are actually engaged in school work 
may have opportunity to attend these schools and departments without 
tuition cost during vacation. Reports of summer normal conductors 
coming annually to the State Department of Education show conclu- 
sively that the teachers of Texas during the summer months of 1914 
spent approximately $300,000 of their own money for professional ad- 
vancement. It is not expected that the State should bear the expenses 
of teachers attending summer normals, but it is recommended that the 
State bear the cost of instruction during the summer sessions for the 
benefit of the public school teachers who may attend such schools, just 
as is now done during the regular sessions. The fact that a teacher in 
the public schools would be permitted to attend school without tuition 
cost would prove a great inducement to the ambitious teacher with 
limited means at her command. It would be difficult for me to name a 
place where any appropriation Ijy the Legislature would be of greater 
service to the schools of the State tlian one made in support of the 



Public Education in Texas 25 

summer school sessions now beino- lield nnniially in the State's schools 
and at the expense of those attending-. As a matter of fact, more than 
95 per cent of those registerint? for summer school work arc teachers 
in the public schools of the State, and it is but reasonable to expect that, 
in return for appropriations as herein recommended, the youth of the 
State will have more efficient teachers to administer unto their edu- 
cational interests. 

THE STATE'S INSTITUTIONS OF HIGHEE LEAENING 

By the State's institutions of higher learning, it is understood here to 
include the four Normal schools, the College of Industrial Arts, the 
A. and M. College, the Medical College, and the State I'niversity. 

From a careful study of the records, it is very clear to the reader that 
it was intended by our fathers that the State have a complete and 
efficient system of education, extending from the rural schools through 
the State's institutions of higher learning, every part of which should 
work smoothly in carrying out the purposes for which the whole system 
was designed. However, in working out the plan, unified control has 
been lacking, and everything has not contributed to the development 
of an adequate and satisfactory system of higher education ; and never 
before in the history of the State was there a greater need for 
adjustment and regulation of the State's institutions of higher learning 
than exists to-day. Heretofore the demands upon the State's institu- 
tions of higher learning were small in comparison with what thov are 
to-day : and likewise, the field of operation of each of these institutions 
was correspondingly limited ; and not until recent vears was it found 
tliat the respective fields of operation of these several institutions would 
conflict o]ic Avitli tlie other. 

THE UNIVERSITY AND THE A. AND :\I. COLLEGE 

The difi'erences between the Agricultural and Mechanical College and 
the University of Texas are recognized in the democratic platform, and 
that these diiffierences should be adjusted satisfactorilv and to the best 
interest of all the people of the State, regardless of partisan feeling, 
every fair-minded person must concede. The problem inTsented is 
one most difficult of solution, and tlie only one having autlioritv to act 
in this matter is the Legislature. As one intensely interested in the 
developuiont of an efficient system of public education for all the ])eople 
of the State, and especially in the development of the State's institutions 
of higher learning, I sincerely recommend that the necessarv steps be 
taken by the present Legislature to adjust now for all time to come 
the differences between these schools and to jiroxiih' adequate mean? 
for unified control. 

As I understand matters, it is held by some that the Constitution of 
the State of Texas stands in the way of sepai-ation; luit. if in the 
judgment of the Legislature, separatian is the logical method of ad- 
justing the differences between the University of Texas and tlie A. and 
M. College, there is a way by which the Constitution can be amended. 
If, on the other hand, it is thought that the one-l)oard idea will bring 
the controversv to an end and make for the develojuncnt of all of the 



26 Recommendations Eegauding 

State's institutions of higher learning, such action should he taken hy 
this Legislature without further delay. Whatever the course may he, 
the educational interests of all the people of the State should, above all 
other things, govern us in our efforts to find a satisfactoiT solution of 
this most vexing prohlem. 

It is my sincere desire to see all of the State's institutions of higlier 
learning prosper in every respect; and it is my purpose to do everything 
within my poAver officially and personally to assist in the develojunent 
of a harmonious and efficient system of public education for the people 
of Texas. As I see the educational situation, consolidation is not the 
solution; and, if the one-board idea means consolidation, I would oppose 
it for the reason that the State already has need for more extended 
college facilities than are now being offered to the youth of the State, 
especially along the lines of agriculture and domestic arts. Instead of 
consolidating the schools we already have, let us establish more schools 
and better schools along the lines suggested, nearer to the homes of the 
people, and let us make of the University of Texas a university of the 
first class and equip it to do graduate and research work instead of 
trying to make of it an over-grown college. 

As previously stated, the State's institutions of higher learning have 
great need for adjustment and regulation, in order that there mav be 
no waste in the operation of these institutions, and in order that they 
may render the greatest service to the greatest possible number of 
people. 

This adjustment and regulation must necessarily come from the legis- 
lature, and if not from them directly, it would have to come from a board 
or commission which would be authorized by it to make a careful study 
of the plans, purposes and oj^erations of all the institutions with a view 
to defining the function of each and prescribing its field of duty. 

Should it follow that the Legislature in its judgment decides that it 
is without sufficient information to settle these differences during the 
present session. I recommend that it provide for a commission of three 
capable and competent persons to make a thorough and impartial study 
of the educational situation in Texas as it relates to the State's insti- 
tutions of higher learning, and in other states as well, with a view to de- 
termining what would be the best plan for the Legislature to adopt for 
the administration of the State's institutions of higher learning in the 
interest of the people of Texas. 

adequate and dependable support needed 

Since the enrollment at the State's institutions of higher learning is 
increasing annually by leaps and bounds, and since the extension idea 
has prevailed, which has for its purpose the carrying of college or uni- 
versity opportunities to the people, it is necessary for the management of 
each institution to make increased demands upon the State's treasury 
for larger appropriations with which to carry out the ideals and p\irposes 
of higher education in Texas. 

The present method of securing appropriations is, as a matter of fact, 
expensive in more ways than one. In the first place, the time consumed 



Public Educatiox ix Texas 27 

by all those persons who go Ijefore tlie Legislature to assist in presenting 
the claims of any institution is a direct loss to the students of the in- 
stitution; in the second place, the financial cost must be charged up to 
the running expenses of the institution; and, in the third place, such 
presentation of claims must necessarily occupy a considerable portion 
of the time of the Legislature and of its members individually, which 
is, of course, an added and unnecessary expense. 

In order to place the State's institutions of higher learning on a satis- 
factory financial basis and to remove these institutions from the domain 
of factional politics, provisions should be made, by constitutional amend- 
ment or otherwise, for the levy of a mill tax that will insure a fixed and 
permanent financial income for the improvement and support of the 
State iSTormal Schools, the College of Industrial Arts, the Agricultural 
and Mechanical College, and the University of Texas. 

THE STATE'S INSTITUTIONS OF PUBLIC LEABXIXG AXD 

PEOTECTIOX 

In speaking of the State's institutions of public learning and protec- 
tion, reference is made to 

Texas State School for the Deaf 

Texas State School for the Blind 

Texas State Juvenile Training School 

Texas State Training School for Girls (not in operation) 

Texas State Home and School for Orphans. 

Great progress has been made in the organization, management and 
administration of instruction in these schools since the enactment by 
the Thirty-third Legislature of a law placing these institutions under 
permanent boards of control. The fact that all of these institutions 
are under the supervision and direction of practical and successful 
school men, thoroughly qualified for the duties of the positions which 
they Iiold, has been the means of placing the su))ervision of these 
institutions on a professional basis which is evidence sufficient within 
itself to indicate that great progress is now being made and without a 
change in administration, still greater progress and development will be 
experienced in the future. 

The provisions of this law made it jwssible for the several boards of 
control to place in charge of the State's institutions of public learning 
and protection practical and thoroughly qualified school administrators 
whereby these institutions are now working on a professional basis. 
With boards of control composed of patriotic and unselfish persons, and 
with assurance that the interna] management of these institutions will 
not be disturbed by political changes it is but reasonable to exi)ect that 
these schools will henceforth make great ]irogrcss in developing their 
facilities and in promoting the interests of their students. 

Stejjs necessary should be taken, by constitutional amendment or 
otherwise, to provide for the erection of needed and permanent fireproof 
huildinos for the institutions named above. And all that has been said 



28 Eecommexdations Eegaeding 

with reference to adequate and dependable financial support for the 
State's institutions of higher learning is easily applicable to the State's 
institutions of public learning and protection. 

THE WOEK OF THE STATE DEPARTMENT OF EDUCATIOX 

It would be impossible to indicate in every detail the woik done by 
the State Superintendent of Public Instruction, since contingent cir- 
cumstances are continually arising in the administration of the school 
affairs of the State. However, a brief synopsis of the statutory duties 
devolving upon the State Superintendent should include the following: 

The State Superintendent of Public Instruction is charged with the 
general supervision of the schools of the State, including the adminis- 
tration of the school laws, with issuing instructions binding for observ- 
ance upon school officers and teachers in interpreting the school laws; 
with serving as secretary to the State Board of Education, keeping 
accurate records with respect to its various duties and filing properly its 
official documents; with visitation on county teachers' institutes, asso- 
ciations, summer normal institutes, and other educational meetings; 
with consideration of appeals from county superintendents, boards of 
trustees in independent school districts and county school trustees; with 
tlie preparation and distribution of forms to be used by various school 
officers in making reports required l)y law; with auditing and approving 
the reports of the various school officials; with monthlv distribution of 
the State available school fund by warrants to the depositoi^ of counties 
and independent school districts ; with auditing and approving the rec- 
ords of the scholastic census; with the appointment of members of the 
State Board of Examiners and Summer Xormal Boards of Examiners, 
and providing for necessary meetings of these boards; with the issuance 
of teachers' State certificates, of the cancellation of teachers' certificates 
for cause; with the classification and approval of high schools of the 
first, second, and third class; with serving as member of the Board of 
Eevision of State text-books; with the preparation and distribution of 
instructions, copies of the school laws, and bulletins upon various edu- 
cational subjects. The law also requires the State Superintendent to 
keep himself informed as to educational progress in the State, and directs 
him to assume the initiative in the solution of many of the prol)lems of 
school legislation and of constructive school work. 

The State Department of Education gives recognition to the fact 
that its purpose should be to serve as completely as possible the school 
interests of the entire State. Personal attention has, therefore, been 
cheerfully given l)y a competent assistant in the oflfice to the commu- 
nications from school trustees, teachers, county superintendents, pul)lic 
officials, and private citizens. The official letters, from one hundred 
to five hundred per day in number, relate to everv .phase of education 
work, and the service rendered in connection with the correspondence is 
of very great value. 

Special attention lias Ijeen given during the past year to tlie dis- 
tribution of literature and l)ul]etins which pertain to constructive school 
policies. Bulletin 34. the State Course of Study, represents the most 
recent and available thought with respect to the work of the pul)1ic 
schools. Thirty thousand copies of this Inilletin have been issued. Of 



Public Education ix Texas 29 

no less influence to the constructive work for the ])ast two years has 
been the compositioji of Bulletin 37, giving an elaborate discussion of 
high school curriculum, equipment and organization. Five thousand 
copies of this bulletin were published. The department now has under 
preparation Bulletin 41, giving a com]n'ehensive discussion of the organi- 
zation of community schools, school l)uildings and plans, and local tax- 
ation for school purposes. Other Inilletins of equal importance have 
been issued according to needs and demands. The Denartment pre- 
pared and printed and distributed 96,000 copies of bulletins u]X)n vari- 
ous subjects for the school year 1913-14. This does not include the 
publication and distribution of approximately 1,500,000 blanks and cir- 
cular letters issued in connection with the reports of county superintend- 
ents, city superintendents, teachers, county depositories, de])ositories of 
independent school districts or census trustees, nor does it include the 
work of auditing and compiling the reports of the various school officials 
of the State. It is not improper to state that the work of the State 
Department of Education increases by leaps and bounds each year, and 
that it has more than doubled within the last five years. 

Tt is of interest to know that in eighteen years time, while the 
scholastic ])opulation of the State has practically doui)led and the work 
of this Dejiartment has more than quadru]iled, onlv tAvo additional men 
have been added. The law requires that the State Superintendent and 
his assistants visit as manv teachers' institutes, summer normal institutes 
and other educational gatherings throughout the State as possible dur- 
ing the year. The demands for such visitation and the opportunity for 
sucli work are totally beyond the capacity of this Department to supply. 

The Thirty-second Legislature provided for the classitieation of all 
higli schools in the common school districts of the State and of all high 
schools in the independent districts applying for State aid for depart- 
ments of vocational training, by the State Superintendent of Public 
Instruction. The State Textbook Board adopted a dual system of text- 
books for use in the different classes of high schools in the State as de- 
termined by the State Superintendent of Public Instruction. This work 
makes it imperative that an additional assistant be given this Depart- 
ment to assist and co-operate with the various high schools of the State 
in effecting the proper classification. 

When the position of certificate clerk was first created, it was de- 
nominated "certificate and law clerk." At the time this position was cre- 
ated fewer than 4000 teachers took the examinations for State certificates 
per annum. ISTow, approximately 15,000 teachers take the examinations 
for teachers' certificates each year, and the certificate clerk, far from 
being aide to receive and answer legal questions, must have assistance for 
more than three months of the 3'ear in order to attend to certificate 
matters only. The great mass of new school legislation and the general 
growth and progress of the State make it imperative that an assistant 
be given this Department to handle the multitudinous legal questions 
continually coming up f6r adjustment. 

More than 900,000 children between the ages of seven and twenty-one 
years now reside in the rural districts of this State. The question of 



30 Eecommendatioxs Eegardixg 

promoting tlieir educational interests is unnsnally imperative at this time 
on account of the rapid economic changes now taking place in all our 
business affairs. Vocational training, compulsory attendance, specializa- 
tion in agriculture, extension of the school term, and numerous other 
reasons and conditions require that extraordinary assistance and co-oper- 
ation be given our rural schools at this time. I am firmly of the opinion 
that these 900,000 country children should be given school privileges 
and opportunities equal to the best offered by their more fortunate neigh- 
bors now living in the cities and towns. This Department will be utterly 
unable to meet the magnificent op^wrtunity and comply with the im- 
perative needs of the rural schools unless the assistant in rural schools 
and the assistant in charge of vocational education, including agri- 
culture, be granted. 

Two men at this Department are now compelled to receive and audit 
the reports of 900 independent district and county treasurers involving 
the expenditure of approximately $15,000,000 per annum. The same 
clerks must receive and audit the reports of 900 independent district 
and county superintendents, compiling statistics concerning everv phase 
of school work in the State. The same clerks will be called upon to 
provide for the distribution of more than $8,000,000 per annum for each 
of the next two years in payment of the State per capita apportionment. 
The same two clerks must provide blanks, receive and audit the scho- 
lastic census of more than 1,110,000 school children, seven to seventeen 
years of age, each of the next two years. The same clerks compile 
most of the statistical records of the State Superintendent's biennial 
report, furnish statistics to all school officers and all parties interested 
in education throughout the State, and answer questions concerning 
statistics for all correspondents outside the State. This work is simply 
more than two men can possibly accomplish with even a fair degree 
of efficiency. I have, tlierefore, recommended an appropriation for a 
recording clerk, who shall also discharge duties of stenographer to assist 
our auditor and our statistical clerk. 

I have considered each item of this recommendation very carefully, 
and am firmly of the opinion that this recommendation represents the 
minimum requirements in each division of the Department work con- 
sistent Avith efficiency and the absolute needs of the schools. Never be- 
fore in the history of the State was there so good an opportunitv to do 
real constructive work along educational lines as now, and it is sincerely 
hoped that the Thirty-fourth Legislature will reco.srnize the importance 
of aggressive and capable leadership in the educational field with the 
people by granting willingly and promptlv the appropriations recom- 
mended by me for the State Deiiartment of Education. 

COXCLUSION 

Since coming into the office of State Superintendent of Public Instruc- 
tion, I have placed the educational interests of the children of Texas 
first and foremost in all my considerations; and, Avith singleness of 
purpose, T have endeavored to give the peojile a common-sense business- 
like administration of the educational affairs of this State. Tt is the 



Public Educatiox ix Texas 31 

ambition and effort of my life to give the people of Texas a broad, 
forward-looking administration of their educational affairs that will 
merit the approval of all patriotic citizens and enlist their hearty co- 
operation in making the precious heritage of an education possible for 
all the children of all the people. 



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LIBRARY OF CONGRESS 



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